Research and analysis

Quality and methodology information for new KPIs

Published 12 June 2025

Applies to England and Wales

1. Quality and methodology information (QMI) for youth justice services’ key performance indicators (KPIs)

About this report

The youth justice system in England and Wales works to prevent offending and reoffending by children. The Youth Justice Board (YJB) is the only statutory body to have oversight of the entire youth justice system. We provide independent, evidence-based advice and leadership to drive improvements that increase children’s positive outcomes and prevent offending.

Set in 2022 by the then Minister of State for Prisons and Probation, the youth justice services (YJSs) have been required to report on 10 new Key Performance Indicators (KPIs) since 2023 as part of the Youth Justice Board’s (YJB) terms and conditions of grant. Alongside these new KPIs, the YJB will continue to report on the four existing KPIs (first time entrants, binary reoffending rate, frequency of reoffending and use of custody)[1]

This report presents the Quality and Methodology Information (QMI) for the ten new KPIs and provides illustrative data for the 2023/2024 reporting year across England and Wales. While the data is not yet suitable for decision-making, it marks a significant step forward in building a bigger and consistent picture of how services support children.

In addition to the main measures, each KPI includes several sub-measures. These are not within the scope of this report, as they are currently being refined through collaborative development (See Efforts to improve data quality: refinement sessions).

The report covers:

• the strengths and limitations of the data

• the methods used to collect the data

• the quality of the data

About the KPIs

The ten new KPIs were designed by the Ministry of Justice (MOJ) in 2022 in consultation with the YJB, front line services, inspectorates, and other government departments. Data collection began in April 2023.

The youth justice system has developed significantly since the current set of KPIs were introduced, with the multi-agency model now much more firmly embedded. Whilst the number of children entering the system with a statutory disposal has fallen significantly, it is clear YJSs are working with increasingly complex caseloads. The MOJ developed these new KPIs to improve our understanding of how YJS partnerships are responding to this different context and to reflect the areas that are strategically important in preventing children offending and delivering effective services for children.

These KPIs will be used alongside other forms of evidence by the YJB to monitor the performance of the system and YJSs across England and Wales. They will inform advice to ministers and support local services in identifying opportunities to improve outcomes for children and prevent children offending.

The 10 new KPIs[2] are:

KPI 1 - Accommodation

KPI 2 - Education, Training, and Employment (ETE)

KPI 3 - Special Educational Needs or Disability (SEND)/Additional Learning Needs (ALN)

KPI 4 - Mental health and emotional wellbeing

KPI 5 - Substance misuse

KPI 6 - Out-of-court resolutions

KPI 7 - Wider services

KPI 8 - Management board

KPI 9 - Serious violence

KPI 10 – Victims

Data sources

KPI data is submitted quarterly by YJSs using one of two methods: case-level or summary-level. Case-level data includes individual child records submitted via the YJS’s case management systems (CMSs). Summary-level data, aggregated by YJSs, is submitted through an Excel template, and is only used by YJSs whose CMSs lacks KPI submission capabilities. These YJSs are migrating to CMS with KPI case-level submission capabilities.

In the last quarter of 2023, 127 (82%) YJSs submitted data at the case-level and 28 (18%) used the template.

Quarterly periods:

• Quarter 1: 1 April – 30 June

• Quarter 2: 1 July – 30 September

• Quarter 3: 1 October – 31 December

• Quarter 4: 1 January – 31 March

This report includes data for Quarter 1 to Quarter 4 2023.

Reporting of KPI data

Currently, YJSs can access quarterly KPI dashboards data through the Youth Justice Application Framework (YJAF[3]). Due to data quality issues discussed below, the data which is currently available via these dashboards is treated as a pilot to support refinement and is not used for analysis or decision-making. Data from the 2025/26 reporting year onwards is anticipated to be improved in quality to use.

KPI pilot and baseline

KPI reporting was introduced in April 2023 without an initial testing period to engage YJSs and CMS suppliers. This has meant that the diagnosis and resolving of data quality issues has been required during the first two years of data collection. Consequently, data collected during the first two years of data collection has not been suitable for analysis or to inform data-driven decision-making.

To support services and reduce the burden of resubmitting all KPI data, the 2023/2024 and 2024/2025 reporting years are being treated as a pilot phase. This approach allows for iterative improvements while preserving the momentum of implementation. It also ensures that services can focus on refining their data collection processes without the need for resubmission.

Looking ahead, the 2025/2026 reporting year will mark a key milestone: the first year of data collection based on fully embedded quality improvements. This data will serve as the official baseline for analysis and oversight, enabling more confident, evidence-based decision-making across the youth justice system. This phased approach reflects the YJB’s commitment to building a strong, sustainable evidence-base for performance monitoring and continuous improvement.

1.1 Data quality

The data that we use to produce statistics must be fit for purpose. High-quality data is essential for effective decision-making. The YJB is committed to continuous improvement to ensure the data meets high standards of accuracy and reliability.

We have assessed the quality of the source data against the data quality dimensions in the Government Data Quality Framework.

Accuracy

Accuracy is about the degree to which the data reflects the real world. This is important to ensure that we can provide a true picture of the outcomes and activities being measured, and that any decisions are based on accurate information. The identified issues below affect the level of accuracy of the KPI data.

Data recording errors

Errors in recording information about children in the CMS or KPI templates by YJSs can result in inaccurate reporting. YJSs are responsible for recording this information, following guidance from the YJB and CMS providers. These errors arise from human error or misunderstanding of the guidance, potentially leading to the overreporting, or underreporting of children.

Examples of overreporting we identified include:

• Case-level: Incorrectly recording that the service was responsible for a child at the time of a legal outcome when they were just looking after the child on behalf of another YJS.

• Template: Reporting higher numbers than there actually were.

Examples of underreporting we identified include:

• Case-level: Using incorrect intervention programme end dates may result in mistakenly excluding children from the data within a quarter.

• Template: Reporting lower numbers than there actually were.

The YJB has taken action to address these issues during a series of data recording webinars held with the sector (see below Efforts to improve data quality).

Data requested from CMS providers

We found that some important information was missing from the annual data requirements requested by the YJB for CMS providers to develop in YJSs systems. Because of these gaps, it was not always possible to filter and identify the right children based on the criteria for each measure. This has affected the accuracy of case identification in reports and can lead to children being wrongly included (overreporting) or left out (underreporting).

How this leads to overreporting:

In some cases, we can’t tell from the data whether a child should be excluded as the relevant fields are missing. As a result, children are being counted when they shouldn’t be. For example:

• Children with orders that were revoked, breached, or refused

• Children who are deceased

How this leads to underreporting:

In other cases, outdated or inconsistent information in the CMS means some children who should be counted are left out. For example, if outdated or incorrect categories are used for ‘legal outcome’ or ‘intervention programme type’, those cases may not be picked up in the data.

As YJSs transition to the latest CMS version (v10) within the 2025/2026 reporting period, these issues should resolve.

Additional guidance required to standardise interpretation across services

YJSs have highlighted the need for clearer guidance on the following definitions to ensure consistent understanding and application across services:

• Accommodation suitability

• ETE suitability

• SEND/ALN

  a) What counts as SEND/ALN

  b) How children with SEND/ALN needs can be identified

• Mental health and substance misuse: What counts as mental health/ substance misuse needs and screening

• Types of wider services being accessed

• Victims: The activities that count as Restorative Justice (RJ).

To address and resolve this we have updated the KPI recording guidance which will be released this summer (2025).

Significant progress has been made toward improving accuracy, with targeted efforts underway to meet the ‘accuracy’ dimension in the 2025/2026 reporting year.

Timeliness

Timeliness refers to how accurately data reflects the period it represents and how current the data is. Data is considered timely when the lag between its collection and availability is appropriate for its intended use. This means that decisions which draw on the data are based on up-to-date information.

The process from data collection to reporting typically spans several months. The data collection period is fixed (e.g. a quarter), followed by a submission deadline, which usually occurs one month after the period ends, allowing time for gathering and submitting the data. Finally, the reporting phase, where the data is analysed and summarized into a dashboard, typically takes 1 to 2 months after the submission deadline. Therefore, the total time from the end of the data collection period to the final report can range from 3 to 4 months. The time between data collection and its availability is appropriate, ensuring that this standard is met.

Uniqueness

Uniqueness refers to the extent to which records are free from duplication.

For measures that count the number of children per quarter, a unique child ID is used to ensure each child is counted only once within each quarter. The analysis code further ensures that only distinct values per YJS are included in the count. This ensures there is no over-counting of children in the data.

However, the child ID is only unique within each YJS and not across all YJSs. This means that if a child is mistakenly recorded as being under the care of multiple YJSs during the same quarter, they may be counted more than once (once in each service), because their child ID may differ between systems. (See Data recording errors: overreporting)

We continue to work to improve the quality of child identifiers to enable consistent tracking when children move between services. Therefore, this dimension is not yet fully met.

Completeness

Completeness describes the degree to which records are present. This is important to ensure all relevant information is available to those who use the data, rather than presenting only a partial picture.

The data submission rates for 2023 are very high, with the majority of YJSs submitting data consistently across all quarters. The lowest submission rate was 98.71% in both Quarter 3 and Quarter 4, indicating that only a small number of YJSs (2 per quarter) did not submit data.

In addition, data undergoes a quarterly reconciliation process, where the data reported on the dashboard is compared with case-level data. This is shared with services, allowing them to verify and validate that the correct number of children are counted each quarter.

For KPI 10 (Victims), some YJSs have missing data due to errors in the CMS, leading to underreported figures. At the YJB’s request, A fix has been implemented by CMS providers, which will ensure accurate data from March 2025 onwards.

Our efforts are active and ongoing to fulfil this dimension, which is not currently met.

Validity

Validity describes the degree to which the data is in the range and format expected. Data needs to meet these requirements to allow it to be used and for us to be confident it is accurate.

CMSs enforce data validation for many fields to prevent users from entering incorrect information and ensure accuracy. Similarly, the KPI 8 management board template contains validation to ensure only 0-1 values are entered. This dimension is being met, supporting the future development and use of KPI data.

Consistency

Consistency refers to the degree to which values in a dataset align without contradiction when representing the same entity. Inconsistent data could be a sign something has been recorded inaccurately, so achieving this dimension is important to ensure we are reporting on information which is correct.

CMSs ensure that values remain consistent across all records associated with a child. This dimension is being met demonstrating the systems capability.

2. Strengths and limitations of the KPI data collected in the 2023/24 and 2024/25 recording years

Strengths:

High data submission rates: The majority of YJSs consistently submit data each quarter, ensuring a large coverage of data. The high submission rates reflect the commitment and diligence of YJSs in providing comprehensive data, which is crucial for informed decision-making and continuous improvement.

Data reconciliation: The data undergoes a quarterly reconciliation process between YJSs and the YJB, which helps improve accuracy and completeness. This process ensures that the data is reliable and trustworthy, supporting development for future analysis.

Timeliness: Data is processed and reported within a reasonable timeframe. The timely processing and reporting of data enable stakeholders to access information and responsive actions to address emerging issues and trends.

Validity and consistency: Validation rules in the CMS prevent incorrect data entry, which ensures data validity and consistency. This enhances the credibility and utility of the KPI data.

Insights potential: From 2025/2026, the KPI data has the potential to provide vital insights into how YJSs and the partnership support children across key areas such as accommodation, education, and mental health. It enables the YJB to assess the partnership nationally and locally, helping identify strengths, gaps in service provision, and areas for improvement. The data also supports the MOJ in understanding barriers to preventing offending and reducing reoffending and informs evidence-based decisions to improve outcomes and strengthen multi-agency collaboration. This forward-looking approach highlights the potential of KPI data in driving positive change and enhancing the effectiveness of YJSs.

Limitations:

Data quality issues: The absence of a pilot phase for the KPIs presented challenges, such as recording inconsistencies and data field gaps. These issues have impacted the accuracy of the data, including overreporting and underreporting of children. Targeted improvements have been made because of significant engagement between the YJB and the sector, and data quality is a continuous improvement process, to enhance accuracy and reliability.

Inconsistency of definitions: Variation in how YJSs interpret certain definitions has highlighted the need for clearer, standardised guidance. This feedback has informed the development of updated KPI recording guidance, due for release in summer 2025, to support greater consistency and comparability.

Data gaps: Some YJSs have missing data for KPI 10 (Victims) due to CMS errors, leading to underreported figures. These have been identified, and a system fix is in place, with improved quality expected in 2025/2026 data, ensuring more complete and representative data moving forward.

Human error: Data entry errors, such as misreporting intervention programme details, have highlighted the importance of ongoing training. In response, the YJB has delivered national webinars and training materials to support accurate and confident data recording.

Limited use for analysis during pilot phase: Data from the 2023/2024 and 2024/2025 reporting years is being treated as a pilot phase to allow for refinement. From Quarter 1 of 2025/2026, the data will be of sufficient quality to support analysis and evidence-based decision-making, marking a significant step forward in the KPI data collections maturity.

Efforts to improve data quality

In response to these data quality limitations identified, the YJB Statistics and Analysis team has taken a proactive and collaborative approach to strengthen the integrity and usability of KPI data. These efforts are laying the groundwork for more robust and insightful reporting system for future years:

Quarterly feedback mechanism: After each data submission and dashboard release, the Statistics and Analysis team collects feedback from YJSs to identify and address any issues. This ongoing feedback loop ensures continuous improvement. The process is carried out quarterly, with each cycle providing valuable insights for the next data release.

Data recording webinars: Between November 2024 and January 2025, the YJB Statistics and Analysis team delivered a national series of webinars to address common data recording challenges. These sessions engaged all YJSs across England and Wales, offering practical guidance and fostering a shared understanding of best practices. Recorded materials and an updated KPI technical guide are now available to support ongoing learning.

Refinement sessions: From January to March 2025, the YJB Statistics and Analysis team worked in partnership with the MOJ’s Youth Justice Policy Unit, YJSs, and subject matter experts to refine KPI definitions and recording guidance.  This collaborative process ensures that the updated guidance (due for release summer 2025) is grounded in frontline experience and supports consistent, accurate data collection across services.

Supplier engagement: The YJB Statistics and Analysis team has also worked closely with CMS providers and the digital services agency responsible for YJAF (NEC) to resolve technical issues affecting data quality. Several improvements have already been implemented, and further enhancements are scheduled for the 2025/2026 reporting year. This engagement reflects the YJB’s commitment to working across the system to deliver sustainable improvements.

3. KPI Data

The tables below shows the main KPI measures for the reporting year 2023/2024, broken down by country. Due to the data quality issues identified in this report, the data in this table is illustrative only and should not be used for analysis or to inform any decision-making.

Table 1

KPI 1 - Accommodation: Proportion of children in suitable accommodation at the end of their order

Area	Value (%)
England	83
Wales	78
England and Wales	83

Table 2

KPI 2 - Education, training, and employment (ETE): Proportion of children in suitable ETE at the end of their order

Area	Value (%)
England	59
Wales	60
England and Wales	59

Table 3

KPI 3 - Special educational needs or disability (SEND)/Additional Learning Needs (ALN): Proportion of children with identified SEND/ALN that have a formal plan in place

Area	Value (%)
England	57
Wales	44
England and Wales	56

Table 4

KPI 4 - Mental health and emotional wellbeing: Proportion of children with an identified need for mental health or emotional wellbeing treatment

Area	Value (%)
England	30
Wales	11
England and Wales	28

Table 5

KPI 5 - Substance misuse: Proportion of children with an identified need for substance misuse treatment

Area	Value (%)
England	59
Wales	60
England and Wales	59

Table 6

KPI 6 - Out-of-court resolutions: Proportion of children with an out-of-court resolution who successfully completed their intervention programme

Area	Value (%)
England	83
Wales	77
England and Wales	83

Table 7

KPI 7 - Wider services: Proportion of children supported by wider care services at the end of their order

Area	Value (%)
England	33
Wales	27
England and Wales	32

Table 8

KPI 8 - Management board: Average number of statutory senior partners† attending management board meetings per YJS

† Children’s Social Care, Education, Police, Probation, and Health, for a total of five

Area	Value
England	4 out of 5
Wales	4 out of 5
England and Wales	4 out of 5

Table 9

KPI 9 - Serious violence: Rate of proven serious violence offences per 10,000 children aged 10-17

Area	Value
England	1.26
Wales	0.90
England and Wales	1.24

Table 10

KPI 10 - Victims: Proportion of victims engaged with Restorative Justice (RJ)

Area	Value (%)
England	34
Wales	62
England and Wales	35

Table 11: Total children with an order ending in the reporting period 2023-24

Area	Value
England	17,155
Wales	1,482
England and Wales	18,637

3.1 Closing notes

The KPI data presented in this report reflects a significant step forward in building a more comprehensive and consistent understanding of youth justice services across England and Wales. While the data is currently shared for information purposes only and is not yet intended to inform decision-making, the foundations laid through high submission rates, the reconciliation processes, and system-built validation are already delivering improvements in data quality.

The YJB is actively collaborating with YJSs, policy officials in the MOJ’s Youth Justice Policy Unit, CMS providers, and other key partners to enhance the accuracy, consistency, and usability of KPI data. These collective efforts are paving the way for a more robust and insightful dataset from 2025/2026 onwards.

Looking ahead, the KPI data will play a vital role in helping services understand how they support children across key areas, identify strengths and service gaps, and drive evidence-based improvements. It will also support national oversight and inform strategic advice to government, ensuring that children’s needs remain the focus of youth justice delivery.

We encourage all stakeholders to continue engaging with the data constructively, recognising both its current limitations and its growing potential.

For any queries or feedback on this report, please contact: statistics@yjb.gov.uk

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[1] However these four existing KPIs are out of scope of this current report

[2] More information about the ten new KPIs is available here: https://www.gov.uk/guidance/key-performance-indicators-for-youth-justice-services

[3] Youth Justice Application Framework (YJAF): An online platform used by youth justice services to manage casework, share assessments and documents, and support the delivery of interventions. YJAF integrates data from multiple sources (including case management systems, AssetPlus, and KPIs) and underpins national reporting.